SCP Mr Shane Ardern Chairperson Primary Production Committee Parliament Buildings WELLINGTON. Dear Mr Ardern

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1 SCP Mr Shane Ardern Chairperson Primary Production Committee Parliament Buildings WELLINGTON Dear Mr Ardern You asked the Ministry for Primary Industries (MPI) to provide the Committee with a briefing on the contribution of bees to New Zealand agriculture, bee health and strategies to address bee health. The MPI information that follows addresses the matters in the Committee s request of 13 May 2014 and outlines MPI activities and plans related to bee health. In addition, MPI has provided the Committee with an A3 on Honey Bees in New Zealand. The A3 provides a picture of the bee and honey industries, the challenges they face and the opportunities available. If the Committee would like further advice on particular areas of our work, MPI would be happy to provide this. Other agencies, including the Environmental Protection Agency, may also have useful information on this topic. Yours sincerely Deborah Roche Deputy Director General Policy and Trade Branch Policy and Trade Biosecurity, Food and Animal WelfarePolicy Pastoral House, 25 The Terrace, PO Box 2526 Wellington 6140, New Zealand Telephone: , Facsimile:

2 Ministry for Primary Industries information on bee health for the Primary Production Committee June 2014 INTRODUCTION 1. This information was prepared in response to a request to the Ministry for Primary Industries (MPI) from the Chairperson of the Primary Production Committee (the Committee) for a briefing on contribution of bees to New Zealand agriculture, bee health and strategies to address bee health. 2. This report covers the items requested by the Committee raised in your request. MPI is undertaking a range of work that links to a number of these matters. This work is summarised at the end of this report in paragraphs Pollination 3. The effective pollination of trees, shrubs and plants is critical to both economic and environmental outcomes. On the economic side, New Zealand's horticulture, crops and pastoral agriculture require effective pollination to provide the fruit, seeds and their products that are traded for human consumption or provide feed for animals. Pollination of native trees and plants provides the seeds to replace them and produces the fruit and seeds that are part of the diet of native insects, lizards, birds and bats. In other words, the existence and health of our native flora and fauna relies on effective pollination. 4. There are a diverse group of pollinators in New Zealand. They include: o honey bees; o solitary bees; o bumble bees; o flies; o butterflies and moths; o beetles; o birds; and o bats. 5. Honey bees and bumble bees are introduced species. Honey bees were introduced in 1839 for honey production and bumble bees in the early 1880s to pollinate red clover. Our native flora evolved and was pollinated by indigenous pollinators. Now native trees and plants are also pollinated by honey bees and bumble bees. 6. MPI is considering how it could contribute to the coordination of activities that support New Zealand s bee health and pollination services. 7. Others with an interest in bee health and pollination include: o Department of Conservation (DOC) o Environmental Protection Agency (EPA) o Ministry of Business, Innovation and Employment (MBIE) o Regional and local Councils 2

3 o Beekeepers o Beekeeping industry organisations o Honey industry including manuka o Horticultural industries o Crop and pastoral industries o Bee researchers CONTRIBUTION OF BEES TO AGRICULTURE Pollination services and the role of bees 8. Honey bees and bumble bees are important pollinators of our orchards, crops and clovers. The demand for pollination hives has been strong from New Zealand s horticulture and arable industries. 9. The National Beekeepers' Association (NBA) has estimated the economic value of honey bees to be $5.1 billion, including $1.5 billion value of clover pollination for the dairy industry (ref. NBA website, 2011). 10. Bee pollination also supports a significant proportion of New Zealand s horticultural crops including kiwifruit, pipfruit, avocados, summerfruit, citrus, persimmons, berryfruit and some vegetables. The export value of horticulture for the year ended June 2013 was $3.53 billion. Of this, kiwifruit was $934 million, pipfruit $484 million, avocados $34 million, frozen peas $53 million and squash $46 million. In addition, seed exports reliant on bee pollination were valued at $27 million for carrot seed, $26 million for radish seed and $21 million for clover seed (ref. Statistics New Zealand, June 2013). 11. Bees are not required for wind pollinated species such as maize or rye grass. 12. Honey bees produce food and other products including honey, beeswax, pollen, propolis, and royal jelly. The premium price for manuka honey is contributing to the increase in the value of the New Zealand honey industry. Nucleus colonies of honey bees and queen bees are also exported. In the year ended June 2013, the value of these exports amounted to $4.4 million. Honey production 13. Honey production has increased in New Zealand, but fluctuates due to climatic variations. The honey crop estimate for 2012/13 was a record 17,825 tonnes. This is considerably above the previous peaks of about 12,500 tonnes in the years Annual honey exports reached $145 million in 2013, a 20 per cent increase on the previous year. Manuka honey has been central to this growth, with growth in honey production and hive numbers heavily concentrated in the North Island. 15. The last three years have also shown the different impacts of the weather on the primary industries, including apiculture. The 2011/12 summer was wet which produced record grass growth for stock through the summer. However the nectar flows for bees were poor and as a consequence so was honey production. 3

4 Number of registered beekeepers Number of registered hives 16. The 2012/13 summer was the opposite. While the widespread summer drought seriously affected the dairy, sheep and beef sectors, the warmer spring weather produced very good nectar flows and record honey production. 17. The estimate for the 2013/14 season honey production is likely to be lower. This reflects unfavourable climatic conditions in late spring and early summer in western parts of the North Island and in some areas of the South Island. Beekeeper and hive numbers 18. Cultivated bee colony numbers are estimated from the number of hives listed by registered beekeepers. Both commercial and hobby beekeepers are required to be registered under the American Foul Brood (AFB) pest management strategy. About 350 commercial beekeepers own over 90 per cent of the hives. The numbers of beekeepers and hives have increased since the industry has learnt how to manage Varroa mite. Hive numbers are up 7 per cent on 2012 numbers. 19. Figure 1 shows the plateau in hive numbers between when the industry responded to Varroa mite, and the subsequent steady increase. The reduction in beekeepers that occurred between 2000 and 2008 is the result of Varroa on hobby beekeepers. Figure 1: New Zealand Registered beekeeper and hive numbers, Beekeepers Hives Year ended 30 June 0 BEE HEALTH 20. Bees are sensitive to changes in the environment and it is challenging to build an overall picture of bee health. Notwithstanding the growth in hive numbers over the last decade, both Government and industry have received anecdotal reports from some New Zealand beekeepers that bee colony losses from unexplained causes have been increasing. They indicate that these losses have been masked by beekeepers dividing their hives at an increased rate to replace the lost hives. This means that simple counts of hive numbers can be misleading. 4

5 21. The NBA carried out a bee colony loss survey during the 2011 winter in an attempt to determine the level of bee colony losses. MPI understands that the responses to the survey were limited and that these mostly attributed losses to specific causes such as Varroa, starvation (that can be attributed to a number of factors), and livestock damage to hives. 22. In 2013, the Bee Industry Group of Federated Farmers and the National Beekeepers Association sought assistance from MPI to undertake a more comprehensive survey. Consequently a group from these two organisations, called the Bee Industry Advisory Council (BIAC), and MPI are calling for expressions of interest to undertake an independent and credible survey/report of the overall health of New Zealand s bee colony populations and emerging trends in losses and causes. 23. The survey results will allow the beekeeping industry, government and other agriindustry stakeholders to better understand overall bee health in New Zealand and the threats faced by bees. It will also assist bee-related scientists to focus their research. BIAC and MPI intend to build on and replicate this survey regularly. Varroa mite 24. The parasitic Varroa mite was first detected in the North Island in 2000 and reached the South Island in It remains the single most detrimental pest of honey bees and is closely associated with many winter colony declines. Without Varroa control measures, most hives die out within six months of being infected with Varroa. The mite sucks fluid from the honey bee s circulatory system. In this process, RNA viruses such as the Deformed Wing virus (DWV) are transmitted to bees. These diseases lead to deformities in bees and generally result in bee disfunction and ultimately death. 25. Since its arrival, Varroa has spread to nearly all of New Zealand. Varroa has destroyed nearly all wild colonies. The only wild colonies now found are those that have recently swarmed from apiaries. All beekeepers manage Varroa levels in hives through the use of miticides and good disease management. Bees that are under stress from Varroa are generally more susceptible to viral and other infections from bacteria and fungi. 26. Beekeepers control Varroa by treating hives with miticides in spring and autumn. This imposes costs on beekeepers that may not be returned by honey production. The main miticide treatments used in New Zealand are Apistan and Bayverol. Some other thymol-based and organic treatments are also being used but have mixed success and generally incur higher labour costs. 27. MPI has received anecdotal reports from some beekeepers that Varroa is developing resistance to commonly used miticides. The development and spread within New Zealand of miticide-resistant Varroa populations presents a major threat to the beekeeping industry. 5

6 28. MPI considers that finding new strategies to manage resistant Varroa populations will be critical to the ongoing health of honey bee populations in New Zealand. Other countries face the same risks. Research is being undertaken both here and overseas to understand and overcome the impacts of Varroa. MPI s Sustainable Farming Fund (SFF) Betta Bees research is underway to improve bee genetics and has a focus on mite resistance to miticides. 29. Beekeepers can reduce the risk of miticide resistance by alternating treatments and carefully following label directions. The suspected presence of resistant populations suggests that not all beekeepers are doing this. 30. There is a very important difference between the impacts of Varroa and that of pesticides on the health of New Zealand bees. While pesticides can be withdrawn from use, Varroa will be with us for the foreseeable future. It is causing major problems and costs for beekeepers throughout New Zealand. We currently have no way of eradicating Varroa and we are challenged to find new and innovative ways to manage the mite and its impacts on bee health. Pesticides 31. Pesticides have been linked to declining bee health in some international reports. In New Zealand the Agriculture Compounds and Veterinary Medicine (ACVM) Act, administered by MPI, regulates the use of agriculture compounds including pesticides and miticides. Appendix One provides further information on the ACVM Act. 32. If a particular pesticide or group of pesticides is found to be causing unwanted impacts on bees, then the pesticide can be withdrawn from use. Providing the pesticide does not persist in the environment, any impacts it might have will rapidly reduce after its use ceases. Bee health should then return to its previous state. 33. The labels on agrichemicals make it clear that the chemical should not be used on plants when bees are likely to be present, for example at flowering. Inappropriate use of insecticide sprays when crops and trees are flowering has been a longstanding problem for beekeepers. Poor timing of spraying by commercial growers or home gardeners can cause bee deaths and sometimes bee colony losses. Horticulturalists and other commercial growers often use integrated pest management programmes that aim to reduce pesticide use by placing a greater emphasis on biological controls and more selective and environmentally benign products. 34. In relation to bee health, risk assessment methodology is currently under discussion in the European Union and in the United States to address the sublethal and long term effects of systemic insecticides on honey bees and enlarge the scope to other pollinators (bumble bees and solitary bees). The New Zealand EPA follows the progress of these discussions. 35. MPI understands that New Zealand beekeeper representatives have informed the EPA that surfactants used with pesticides might also be a threat for New Zealand bees. Surfactants are wetting agents used to obtain better coverage of pesticides on plants. 6

7 Neonicotinoids 36. Internationally there has been particular attention focussed on the possible impact of systemic neonicotinoid insecticides on bee health, including as a possible cause of Colony Collapse Disorder (CCD). There is currently no evidence of CCD in New Zealand. These pesticides are commonly used as a seed dressing where they are absorbed by the seed and remain active during the early stages of plant growth. They are also used as foliar sprays. 37. The concern about this group of insecticides is about possible chronic rather than acute effects. Some research has suggested that very low levels of these pesticides, perhaps in combination with viruses or other stresses on bees over time, may result in bee and hive losses. 38. In New Zealand, the use of neonicotinoid pesticides is overseen by two agencies. The EPA assesses and manages the environmental impacts of pesticides including risks to bees, along with health and safety aspects of their use. MPI s ACVM Group ensures that they are used in a way that minimises residues and ensures that food safety is not compromised. 39. From December 2013 the European Union restricted some field uses of three neonicotinoid pesticides including seed treatment, soil application, and foliar treatment on plants and cereals that are attractive to bees. The particular pesticides are clothianidin, imidacloprid, and thiamethoxam. The restriction will be reviewed within two years, during which time further studies will take place on the possible impacts of the pesticide ban on bee health. These European studies may provide answers to a number of questions about bee health and the use of neonicotinoids. 40. MPI currently has no evidence that these pesticides (when used correctly) are impacting bee health in New Zealand. If these pesticides are affecting bee health in New Zealand, the effects are more likely to be small and/or localised. The use of neonicotinoids is already subject to both EPA and ACVM controls. 41. Both MPI and the EPA are monitoring international developments on neonicotinoids and their potential impacts on bee health. Poor food and nutrition 42. Bees forage from a wide range of native and introduced plants and thrive when there are good quality pollen sources available and a strong nectar flow. If these are not available, through seasonal or other factors, bee and bee colony numbers and health can suffer. 43. Intensively-managed agricultural environments that have a limited range of nectar and pollen sources due to weed control, short grazing rotations and limited amenity plantings, lead to poorer bee colony health. The Trees for Bees programme has been designed to offset the impact of these factors on bee health. 7

8 Trees for Bees programme 44. The Trees for Bees programme is an example of how MPI works with the bee industry. Supported by the MPI Sustainable Farming Fund programme, Trees for Bees was established by the Federated Farmers Bee Industry Group. The programme aims to ensure bees have the opportunity to gather quality pollen and nectar to provide the vitamins and minerals required to maintain optimum hive strength and a viable pollinator bee population. 45. This project promotes planting of particular species to different groups such as farmers and urban gardeners, and has strong bee industry support. Planting choices remain the decision of the landowner. MPI hopes that the goals of Trees for Bees will be assisted by working with groups including the Department of Conservation, Regional and Local Councils, to plant trees that support year round bee nutrition. Environmental factors 46. Wet and cold weather, flooding of hives and placement of hives in exposed areas all impact bee health. 47. Air pollution has little effect on bee health as it is not a significant issue in New Zealand and most bee populations are rural. 48. There has been some inconclusive discussion internationally on whether electromagnetic fields might cause or contribute to colony losses. Intensive trucking 49. Commercial beekeeping involves trucking bees to where they are needed at particular times of the year for pollination. In some countries, where large areas of land are planted in single crops, beekeepers must transport their hives long distances. Prolonged confinement and temperature fluctuation is stressful to bees and can bolster bee disease in a colony. In New Zealand, where transport distances are comparatively short, there is no evidence of a problem. Honey bee genetics 50. New Zealand bees lack genetic diversity. Greater diversity in the bee gene pool would improve opportunities to develop or breed resistance to Varroa and other pests and diseases. As mentioned previously, work is underway via the MPI SFF to try to improve New Zealand bee genetics with a particular focus on Varroa mite resistance. Hive management 51. Bee health suffers when there is ineffective Varroa management, hives are overstocked, and when hives are overused for commercial pollination of trees or crops. Business drivers are important. There is significant pressure on beekeepers to, for example, feed sugar in winter to prepare bees for pollination of early crops and orchards. Some crops such as kiwifruit, are of low nutritional value to bees. Manuka is also not a good food source for bees. However the high price for manuka honey has led to dense hive placement in some manuka rich areas. 8

9 Small Hive Beetle 52. Small Hive Beetle (Aethina tumida) is not present in New Zealand. The beetle can be a destructive pest to honey bee colonies, causing damage to comb, stored honey, and pollen. If a beetle infestation is sufficiently heavy, it may cause bees to abandon their hive. The beetles can also be a pest of stored combs and comb honey awaiting extraction. Beetle larvae may tunnel through honey combs, feeding and defecating, causing discoloration and fermentation of the honey. 53. MPI follows up on any suspected observations of Small Hive Beetle. Recently, a joint exercise across MPI and industry was undertaken on responding to an incursion of the beetle, to simulate working within the Government Industry Agreement (GIA) framework. This is discussed in more detail in paragraphs 69 and 70. Nosema ceranae 54. Nosema ceranae is a microscopic spore-forming parasite that attacks the lining of the middle intestine of worker bees, queens and drones. Like the related Nosema apis, N. ceranae infects adult bees, causing the digestive tract condition nosema disease (also known as nosemosis). 55. In September 2010, N. ceranae was detected in New Zealand as part of an investigation into hive illness at a Coromandel-based beekeeping operation. The colony die-off was attributed to parasitic mite syndrome compounded by climatic conditions and ineffective mite treatment. No other exotic organisms were detected. 56. On the basis of test results and knowledge of the high number of hive movements in and around the Coromandel, the then Ministry of Agriculture (MAF) determined that N. ceranae was established in New Zealand to an extent that it could not be eradicated. MAF also determined that movement controls/restrictions would not control N. ceranae and that eradication was not feasible. 57. New Zealand beekeepers already manage nosema disease because it has been traditionally attributed to the very similar parasite N. apis, which is thought to have been in New Zealand since the mid-1800s. 58. N. ceranae is not a notifiable or an OIE (International Organisation for Animal Health) listed disease, therefore its presence has no trade impacts for New Zealand. There are no human health impacts arising from the presence of N. ceranae. European Foul Brood 59. European foulbrood disease (EFB) is not present in New Zealand. The disease is caused by the bacterium Melissococcus pluton. It is characterized by dead and dying larvae which can appear curled upwards, brown or yellow, melted, and/or dried out and rubbery. It is notifiable under the New Zealand Biosecurity Act

10 Threats to bumble bees and native solitary bees 60. Native pollinators include bumble bees and solitary bees. They often survive in refuges in wild areas away from agricultural spraying, but may still be poisoned in massive spray programs for mosquitoes, gypsy moths or other insect pests. 61. Although pesticide use remains a concern, the major problem for wild pollinator populations is the loss of the flower-rich habitat on which they depend upon for food. Throughout the Northern Hemisphere, the last 70 or so years have seen an intensification of agricultural systems, which has decreased the abundance and diversity of wild flowers. 62. Bumble bee species are declining in Europe, North America, and Asia due to a number of factors, including land-use change that reduces bumblebee food plants. There is no information on bumble bee numbers in New Zealand. MPI ACTIVITIES INVOLVING BEES AND POLLINATION 63. Given the importance of honey bees in pollination and honey production, MPI is working in a number of areas and with various bee groups to support the bee industry. Some of these activities relate to honey production and others to bee health, pollination and biosecurity services more generally. MPI s activities include: o Provision of overall biosecurity protection to primary industries in pre-border, border and post-border activities; o Assisting the review and approval of the American Foulbrood National Pest Management Plan; o Working with NBA and Federated Farmers Bee Industry Group to develop and implement a national bee colony loss survey to help establish a baseline bee health record and identify trends in bee health nationwide. The survey outcomes will be instrumental in directing any strategy for the protection of pollination services by honey bees; o Working to better understand the baseline microbial flora of bees in New Zealand; o Co-funding a national apiary register; o Developing import health standards; o Facilitating market access and honey residue testing; o Negotiating and issuing export certification for honey and bee products; o Supporting Sustainable Farming Fund programmes including: - Trees for bees (Federated Farmer Bee Industry Group) quality pollen supplies; - Betta bees with Otago University, bee genetics to improve understanding of bee resilience to Varroa and to weather; - Sustainable management of natural alkaloids in honey; - Exploring the scope of Maori Agribusiness. o Operating the Primary Growth Partnership - High Performance Manuka Plantations Programme. The goal is to develop a science basis for manuka husbandry, with co-investors - Manuka Research Partnership (NZ) Limited and Comvita Limited; 10

11 o Co-funding a study with Department of Conservation to evaluate and aggregate the estimated costs of introduced vespid wasps across all affected New Zealand sectors, including effects on bees; o Participating in the Bee Products Standards Council with industry representatives to sets standards for honey and address other industry issues; o Developing a manuka honey labelling guideline; and o Working with the industry on the Government Industry Agreement (GIA) for biosecurity readiness and response. Honey imports development of an Import Health Standard (IHS) for imported honey 64. Australia has been seeking access to the New Zealand honey market for many years, but has been restricted on biosecurity grounds. New Zealand honey, however, can be freely exported to Australia. The bee industry in New Zealand is concerned about the risk of exotic pests and diseases (including EFB) being introduced into the country if imports of Australian honey are permitted through a new IHS. 65. The Biosecurity Act 1993 and New Zealand s international trade commitments require that the import procedures and controls imposed by an IHS be supported by scientific and technical evidence related to the management of biosecurity risks. 66. In 2004, MPI released an import risk analysis for Australian honey. This concluded that the risk of EFB could be effectively managed by the heat-treatment of honey. In 2006, MPI released an IHS for honey from Australia. 67. The IHS implementation has been delayed by legal action by the National Beekeepers Association, legislative changes to the Biosecurity Act 1993 and the Hazardous Substances and New Organisms Act Additional identification and risk assessment is underway on new bee diseases that have emerged since the 2004 risk analysis. This is proving to be time consuming and conclusions are not currently expected to be available before late GIA for Biosecurity Preparedness and Response 68. The Government Industry Agreement (GIA) on biosecurity preparedness and response is providing an opportunity for bee industry representatives to work closely with MPI on issues relating to pest and disease risks to New Zealand bees. The GIA provides an opportunity for the industry to take a greater role in decision-making on biosecurity preparedness and response, in return for financial contribution to any joint activities they agree to undertake with MPI. 69. The bee industry (NBA and the Federated Farmers Bee Industry Group) are also interested in working together and join GIA. The two groups are actively working through how they can engage in GIA, and how they would be represented at the decision table. To help practice GIA-in-action the bee industry groups together with MPI and AsureQuality recently ran an exercise for Small Hive Beetle. 11

12 70. The aim was to familiarise bee industry representatives with how biosecurity responses in New Zealand operate. A review of the Draft MPI Operational Specifications for Small Hive Beetle was conducted, in a scenario-based tabletop exercise. 71. The industry has signed the Memorandum of Understanding for the GIA. It is considering signing the deed in 2015, once it has consulted with industry and obtained a mandate. 12

13 Appendix One: Pesticide Regulation in New Zealand 1. Two Acts govern the approval for use of pesticides in New Zealand. These are the Hazardous Substances and New Organisms (HSNO) Act 1996 administered by the Environmental Protection Agency (EPA), and the Agricultural Compounds and Veterinary Medicines (ACVM) Act 1997, administered by the Agricultural Compounds and Veterinary Medicines (ACVM) Group of the Ministry for Primary Industries (MPI). Hazardous Substances and New Organisms (HSNO) Act The purpose of the HSNO Act is to protect human health and the environment by preventing or managing any harmful effects of hazardous substances and new organisms. The HSNO Act is administered by the EPA and regulates the manufacture, import, use, storage and transhipment of hazardous substances including pesticides. 3. The EPA assesses the risks to human health and the environment associated with hazardous substances and recommends controls on how they can be used. These controls cover the full lifecycle of a substance including requirements for containment, labelling, storage, use, transport and disposal. 4. Approvals for pesticides under the HSNO Act are specific to a substance rather than an applicant. The approvals remain valid until they are declined through reassessment. Any person, including the Chief Executive of the EPA, can request that the EPA decide whether there are grounds for reassessment of a hazardous substance. This can be followed up with formal application for a reassessment of the approval. 5. A number of agencies undertake HSNO enforcement responsibilities under EPA oversight, including the Ministry of Business, Innovation and Employment (Labour Group), Maritime Safety Authority, New Zealand Transport Authority, MPI, Regional and Local Authorities, and New Zealand Police. Agricultural Compounds and Veterinary Medicines (ACVM) Act The ACVM Act is administered by the MPI. The Act regulates agricultural compounds that are imported, manufactured, sold and used in the management of plants and animals (including agricultural chemicals, fertilisers, stock food, pet food and veterinary medicines). The purpose of the Act is to manage risks associated with agricultural compounds including: o risks to public health; o risks to trade in primary produce; o risks to animal welfare; and o risks to agricultural security. 13

14 7. No agricultural compound may be used in New Zealand unless the use is authorised by or under the ACVM Act. The Act provides risk management mechanisms. These include, for registered products: o A wide range of conditions of registration, e.g. conditions on importation, manufacture, labelling, packaging, storage, who can sell or use; o Limiting the term of registration; o Approval of operating plans; and o Recognition of persons. 8. Registration of a trade name product requires assessment of chemistry and manufacturing information, efficacy, animal and plant safety and residues in food and feed commodities. The assessment of agricultural compound residue information is used to establish maximum residue limits under the Food Act